DS 740 
.5 

.J3 M5 
1921 
Copy 3 



The A B C's of the 



Twenty-One Demands 



By Thomas F. Millard 



Published by 

The Weekly Review of the Far East 
shanghai, china 

1921 



The A B C*S of the 

TWENTY-ONE DEMANDS 



\\^ l^-^ 



^(h 6 0^' 

By Thomas F. Millard 

Author of 

"AMERICA AND THE FAR EASTERN QUESTION," "DEMOCRACY AND 

THE EASTERN QUESTION," **OUR EASTERN QUESTION," 

EW FAR EAST," "THE SHANTl 

AT THE CONFERENCE," ETC. 



1921 



Published by 

The Weekly Review of the Far East 
Shanghai, China 

Price $1.00 



C^ 



Gift 
Parnegie Elndowment 
for Int. Peace 

^Ah 2 8 1938 



TJsno 

.5 



Introductory Note 



The purpose of this discussion of the Twenty-One De- 
mands by Japan upon China in 1915 is to visualize to the 
Americans the exact meaning of this curious phase of 
Oriental diplomacy in its relationship to the traditional 
American policy of the Open Door of Equal Opportunity in 
the Far East. 

We have tried seriously by paraphrasing the Demands 
to show what they would have meant had they been applied 
to the United States instead of the Republic of China. 

Since the chief purposes back of the Conference on 
Limitation of Armament and Pacific Far Eastern Problems 
are in the re-establishment of the doctrine of the open door 
and to obtain international recognition of the principle of 
the integrity of China, we hope that this booklet may be of 
interest in a true understanding of the subject. 

Other books in this series pertaining to the Conference 
which have recently been published are, "The Shantung 
Case at the Conference," and "America's Position on the 
Shantung Question." 

— The Weekly Review of the Far East, Shanghai. 

The Weekly Review of the Far East is an American- 
owned and edited magazine devoted to the economic, 
political and social development of the Republic of China. 



The A B C's of the 

TWENTY-ONE DEMANDS 



Intelligent persons who are trying to follow the issues of 
the Conference on the Limitation of Armaments and Far 
Eastern and Pacific Ocean Questions at Washington hardly 
can have failed to notice the repetition by responsible Jap- 
anese statesmen, by the Japanese press, and with great fre- 
quency by writers of other than Japanese nationality, of 
the assertion that the policy of the Japanese Government is 
in no sense threatening to China, and is not conceived in a 
spirit of aggression upon the territorial integrity and politi- 
cal autonomy of China. 

It is in the acts of the Japanese Government that a true 
exposition of Japan's policy in China is to be found; and the 
most recent expose of the real policy and objects of Japan 
visavis China is contained in the famous "Twenty-One De- 
mands" made by the Japanese Government to the Chinese 
Government in 1915. 

The true content of those demands is discovered in a 
reading of their text, but before giving the text of the de- 
mands in full, a brief preliminary explanation will help in 
understanding their meaning and purposes. In 1914, soon 
after the Great War began (disregarding the efforts of 
China and neutral nations which would have neutralized 
the German leased port at Tsingtau, China, without em- 
broiling China in the scope of hostilities and thereby elimi- 
nated it as a factor in German operations for the period of 
the war), Japanese military forces had occupied, against 
the protest of China, the territory of the German leasehold 

[ 1 ] 



The A B C's of the TWENTY-ONE DEMANDS 

on Kiaochou Bay, in Shantung Province, and had farther 
extended Japanese military occupation over almost the 
whole area of the Province, outside the German leasehold. 
This was the situation when, on January 18, 1915, the Jap- 
anese Minister at Peking, acting under instructions from 
his Government, privately presented to the Chinese Govern- 
ment a series of proposals, in five groups and twenty-one 
articles. 

The text of the original demands which follows is the 
official translation into English published by the Chinese 
Government, and confirmed officially in various ways. As a 
device to make the true meaning to China, and the purposes 
of the Japanese Government plain to American comprehen- 
sion, I have in parallel columns given, on the left the actual 
text of the demands, and on the right a paraphrase of the 
demands showing with approximate accuracy how those de- 
mands would have transposed had they been addressed to 
the American Government, instead of to China. 

THE DEMANDS PARA- 
THE REAL DEMANDS PHRASED 

I. I. 

The Japanese Government and The Japanese Government and 

the Chinese Government being the Government of the United 

desirous of maintaining the gen- States of America being desirous 

eral peace in Eastern Asia and of maintaining the general peace 

further strengthening the in the Pacific Ocean and further 

friendly relations and good strengthening the friendly rela- 

neighborhood existing between tions and good neighborhood ex- 

the two nations, agree to the f ol- isting between the two nations, 

lowing articles : agree to the following articles : 

Article 1. The Chinese Gov- Article 1. The Government 
ernment engages to give full as- of the United States of America 
sent to all matters upon which engages to give full assent to all 
the Japanese Government may matters upon which the Jap- 
hereafter agree with the Ger- anese Government may here- 

[2] 



The A B C's of the TWENTY-ONE DEMANDS 



man Government relating to the 
disposition of all rights, inter- 
ests and concessions which Ger- 
many, by virtue of treaties or 
otherwise, possesses in relation 
to the Province of Shantung. 

Article 2. The Chinese Gov- 
ernment engages that within the 
Province of Shantung and along 
its coast no territory or island 
will be ceded or leased to a third 
Power under any pretext. 

Article 3. The Chinese Gov- 
ernment consents to Japan build- 
ing a railway from Chefoo or 
Lungkow (in Shantung) to join 
the Kiaochou-Tsingtau Railway. 

Article 4. The Chinese Gov- 
ernment engages in the interest 
of trade and for the residence of 
foreigners to open by herself as 
soon as possible certain impor- 
tant cities and towns in the 
Province of Shantung as com- 
mercial ports. What places shall 
be opened are to be jointly de- 
cided (by Japan and China) in 
a separate agreement. 



after agree with the German 
Government relating to the dis- 
position of all rights, interests 
and property which Germany, 
by virtue of treaties or other- 
wise, possesses in relation to the 
State of California. 

Article 2. The American 
Government engages that with- 
in the State of California and 
along its coast no territory or 
island will be ceded or leased to 
a third Power under any pre- 
text. 

Article 3. The American 
Government consents to Japan 
building a railway from a port 
in California to be selected by 
Japan to join the Southern Pa- 
cific Railway System. 

Article 4. The American 
Government engages in the in- 
terest of trade and for the resi- 
dence of foreigners to open as 
soon as possible certain impor- 
tant cities and towns in the State 
of California as commercial 
ports. What places shall be 
opened are to be decided in a 
separate agreement. 



II. 

The Japanese Government 
and the Chinese Government, 
since the Chinese Government 
has always acknowledged the 
special position enjoyed by 
Japan in South Manchuria and 



II. 

The Japanese Government 
and the American Government, 
since the American Government 
has always acknowledged the 
special position enjoyed by 
Japan in Alaska and in the 



[3] 



The A B C's of the TWENTY-ONE DEMANDS 



Eastern Inner Mongolia, agree 
to the following articles: 

Article 1. The two Con- 
tracting Parties mutually agree 
that the term of the lease of Port 
Arthur and Dalny and the term 
of the lease of the South Man- 
churian Railway and the An- 
tung-Mukden Railway shall be 
extended to the period of 99 
years. 

Article 2. Japanese sub- 
jects in South Manchuria and 
Eastern Inner Mongolia shall 
have the right to lease or own 
land required either for erect- 
ing suitable buildings for trade 
and manufacture or for farming. 

Article 3. Japanese sub- 
jects shall be free to reside and 
travel in South Manchuria and 
Eastern Inner Mongolia and to 
engage in business of any kind 
whatsoever. 

Article 4. The Chinese Gov- 
ernment agrees to grant to Jap- 
anese subjects the right of open- 
ing the mines in South Man- 
churia and Eastern Inner Mon- 
golia. As regards what mines 
shall be opened, they shall be de- 
cided upon jointly. 

Article 5. The Chinese Gov- 
ernment agrees that in respect 
of the (two) cases mentioned 
herein below the Japanese Gov- 
ernment's consent shall be first 
obtained before action is taken : 



States of Oregon and Washing- 
ton, agree to the following 
articles : 

Article 1. The two Con- 
tracting Parties mutually agree 
that the term of the lease to 
Japan of the Port of Seattle and 
of the Alaskan and Northern 
Pacific Railways shall be ex- 
tended to the period of 99 years. 



Article 2. Japanese sub- 
jects in the States of Oregon and 
Washington, and Alaska, shall 
have the right to lease or own 
land required either for erecting 
suitable buildings for trade and 
manufacture or for farming. 

Article 3. Japanese sub- 
jects shall be free to reside and 
travel in the States of Oregon 
and Washington, and Alaska, 
and to engage in business of any 
kind whatsoever. 

Article 4. The American 
Government agrees to grant to 
Japanese subjects the right of 
exploitation of the mineral re- 
sources in the States of Oregon 
and Washington, and Alaska. 
As regards what resources shall 
be exploited, they shall be de- 
cided upon jointly. 

Article 5. The American 
Government agrees that in re- 
spect of the (two) cases herein 
below mentioned the Japanese 
Government's consent shall be 
first obtained before action is 
taken : 



[4] 



The A B C's of the TWENTY-ONE DEMANDS 



(a) Whenever permission is 
granted to the subject of a third 
Power to build a railway, or to 
make a loan with a third Power 
for the purpose of building a 
railway in South Manchuria and 
Eastern Inner Mongolia. 

(b) Whenever a loan is to be 
made with a third Power pledg- 
ing the local taxes of South Man- 
churia and Eastern Inner Mon- 
golia as security. 

Article 6. The Chinese Gov- 
ernment agrees that if the Chi- 
nese Government employs politi- 
cal, financial or military advisers 
or instructors in South Man- 
churia or Eastern Inner Mon- 
golia, the Japanese Government 
shall first be consulted. 

Article 7. The Chinese Gov- 
ernment agrees that control and 
management of the Kirin- 
Changchun Railway shall be 
handed over to the Japanese 
Government for a term of 99 
years dating from the signing 
of this Agreement. 



(a) Whenever permission is 
granted to the subject of a third 
Power to build a railway, or to 
make an international loan for 
the purpose of building a rail- 
way in the States of Oregon and 
Washington, and in Alaska. 

(b) Whenever a loan is to be 
issued for international sub- 
scription pledging the local taxes 
of the States of Oregon and 
Washington, or Alaska, as se- 
curity. 

Article 6. The American 
Government agrees that if the 
American Government employs 
political, financial or military 
advisers or instructors in Ore- 
gon, Washington, or Alaska, the 
Japanese Government shall first 
be consulted. 

Article 7. The American 
Government agrees that control 
and management of the Oregon 
Short Line Railway shall be 
handed over to the Japanese 
Government for a term of 99 
years dating from the signing of 
this Agreement. 



III. 

The Japanese Government 
and the Chinese Government, 
seeing that Japanese financiers 
and the Hanyehping Company 
have close relations with each 
other at present and desiring 
that the common interests of the 
two nations shall be advanced, 
agree to the following articles: 



III. 

The Japanese Government 
and the American Government, 
seeing that Japanese financiers 
and the United States Steel Cor- 
poration and its associated in- 
dustries have close relations 
with each other at present and 
desiring that the common inter- 
ests of the two nations shall be 



[5] 



The A B C's of the TWENTY-ONE DEMANDS 



advanced, agree to the following 
articles : 



Article 1. The two Con- 
tracting Parties mutually agree 
that when the opportune mo- 
ment arrives the Hanyehping 
Company shall be made a joint 
concern of the two nations and 
they further agree that without 
the previous consent of Japan, 
China shall not by her own act 
dispose of the rights and prop- 
erty of whatsoever nature of the 
said Company nor cause the said 
Company to dispose freely of 
same. 



Article 2. The Chinese Gov- 
ernment agrees that all mines in 
the neighborhood of those owned 
by the Hanyehping Company 
shall not be permitted, without 
the consent of the said Company, 
to be worked by other persons 
outside of the said Company; 
and further agrees that if it is 
desired to carry out any under- 
taking which, it is apprehended, 
may directly or indirectly affect 
the interests of the said Com- 
pany, the consent of the said 
Company shall first be obtained. 



Article 1. The two Con- 
tracting Parties mutually agree 
that when the opportune mo- 
ment arrives the United States 
Steel Corporation and its asso- 
ciated industries shall be made a 
joint concern of the two nations 
and they further agree that 
without the previous consent of 
Japan the American Govern- 
ment shall not by its own act dis- 
pose of the rights and property 
of whatsoever nature of the said 
Corporation and its associated 
industries, nor permit the said 
Corporation to dispose freely of 
same. 

Article 2. The American 
Government agrees that all 
mines in the neighborhood of 
those owned by the United 
States Steel Corporation and its 
associated industries shall not 
be permitted, without the con- 
sent of the said Corporation, to 
be worked by other persons out- 
side of the said Corporation; 
and the American Government 
further agrees that if it is de- 
sired to carry out any under- 
taking which, it is apprehended, 
may directly or indirectly affect 
the interests of the said Corpo- 
ration, the consent of the said 
Corporation shall first be ob- 
tained. 



[6] 



The A B C's of the TWENTY-ONE DEMANDS 



IV. 

The Japanese Government and 
the Chinese Government with 
the object of effectively pre- 
serving the territorial integrity 
of China agree to the following 
special Article: 

The Chinese Government en- 
gages not to cede or to lease to a 
third Power any harbor or bay 
or island along the coast of 
China. 



IV. 

The Japanese Government 
and the American Government 
with the object of effectively pre- 
serving the territorial integrity 
of the United States agree to the 
following special Article: 

The American Government 
engages not to cede or to lease 
to a third Power any harbor or 
bay or island along the coast of 
the United States. 



V. 

Article 1. The Chinese Cen- 
tral Government shall employ in- 
fluential Japanese as advisers in 
political, financial and military 
affairs. 

Article 2. Japanese hos- 
pitals, churches and schools in 
the interior of China shall be 
granted the right of owning 
land. 

Article 3. Inasmuch as the 
Japanese Government and the 
Chinese Government have had 
many cases of dispute between 
Japanese and Chinese to settle, 
cases which caused no little mis- 
understanding, it is for this rea- 
son necessary that the police de- 
partments of important places 
(in China) shall be jointly ad- 
ministered by Japanese and Chi- 
nese, or that the police depart- 
ments of these places shall em- 
ploy numerous Japanese to that 
they may at the same time help 



V. 

Article 1. The American 
Government at Washington, 
D. C, shall employ influential 
Japanese as advisers in political, 
financial and military affairs. 

Article 2. Japanese hos- 
pitals, churches and schools in 
the United States shall be 
granted the right of owning 
land. 

Article 3. Inasmuch as the 
Japanese Government and the 
American Government have had 
many cases of dispute between 
Japanese and Americans (in 
America) to settle, cases which 
caused no little misunderstand- 
ing, it is for this reason neces- 
sary that the police departments 
of important cities in America 
shall be jointly administered by 
Japanese and Americans, or that 
the police departments of these 
places shall employ numerous 
Japanese to that they may help 



[7] 



The A B C's of the TWENTY-ONE DEMANDS 



to plan for the improvement of 
the Chinese police service. 

Article 4. China shall pur- 
chase from Japan a fixed amount 
of munitions of war (say 50 per 
cent, or more) of v^^hat is needed 
by the Chinese Government, or 
there shall be established in 
China a Sino- Japanese jointly 
worked arsenal. Japanese 
technical experts are to be em- 
ployed and Japanese material to 
be used. 

Article 5. China agrees to 
grant to Japan the right of con- 
structing a railway connecting 
Wuchang v^ith Kiukiang and 
Nanchang, and another line be- 
tween Nanchang and Hangchow, 
and another line between Nan- 
chang and Chaochou. 

Article 6. If China needs 
foreign capital to work mines, 
build railways and construct 
harbor works (including dock- 
yards) in the Province of 
Fukien, Japan shall be first con- 
sulted. 

Article 7. China agrees that 
Japanese subjects shall have the 
right of missionary propaganda 
in China. 



to plan for the improvement of 
the American police service. 

Article 4. The United 
States shall purchase from 
Japan a fixed amount of muni- 
tions of war (say 50 per cent, or 
mxore) of what is needed by the 
American Government, or there 
shall be established in America 
a Japan- American jointly 
worked arsenal. Japanese 
technical experts are to be em- 
ployed and Japanese material 
used. 

Article 5. The American 
Government agrees to grant to 
Japan the right of constructing 
a railway connecting Chicago 
with St. Louis and Pittsburgh, 
and another line between Pitts- 
burgh and Baltimore, and an- 
other line between Pittsburgh 
and Charleston. 

Article 6. If the United 
States needs foreign capital to 
develop mines, build railways 
and construct harbors (includ- 
ing dock-yards) in the States of 
Virginia and North Carolina, 
Japan shall be first consulted. 

Article 7. The American 
Government agrees that Jap- 
anese subjects shall have the 
right of Budhist propaganda in 
the United States. 



Shantung Province has a population of about 30,000,000. 
The region has been an integral part of China continuously 
since before the dawn of authentic history, and is peopled 
today by the descendants of families who have lived there 
for thousands of years. The coastline contains a number of 



[8] 



The A B C's of the TWENTY-ONE DEMANDS 

the best harbors in China, and the railways in the province 
penetrate directly to the heart of China and the whole region 
drained by the Yellow River. 

In respect to Group I. of the demands, regarding 
Shantung Province, the comparison with California in the 
paraphrase requires one to take it as if, when the Great War 
commenced, German capital was invested in the Southern 
Pacific Railway and the entire harbor works of San Fran- 
cisco, and these interests were to be transferred to Japan 
by the terms of the proposed agreement. 

In the articles relating to the Hanyehping Company, the 
only important steel works in China, and controlling most 
of the yielding iron beds, it may be stated that these works 
are located at Hanyang, one of the three cities (Hankow, 
Wuchang and Hanyang) situated at the junction of the Han 
and Yangtze rivers, and which together compare to Chicago 
in America, with this difference: Hankow is 650 miles 
from the mouth of the Yangtze, and is reached by ocean-go- 
ing ships of considerable tonnage, is in fact a sea port in the 
center of China. Taking advantage of the disorders in con- 
nection with the rebellion of 1913, the Japanese Government 
erected permanent barracks at Hankow and still maintains 
there a military garrison, over the protests of China. The 
proposals regarding the Hankehping Company should be 
read by Americans as if the Bank of Japan, or the Mitsui 
Company, owned a controlling interest in or a blanket mort- 
gage over the property of the Steel Corporation, and had a 
garrison at Pittsburg to protect their interests. 

The paraphrase of articles of Group V. should be read 
as if Japanese in America were under "extra-territorial" 
provisions, and exempt from the processes of American law 
and courts, and could only be tried for offenses committed in 
America, in Japanese courts, or by Japanese consular offi- 
cials. In this connection it is pertinent to remember that 
the Government of Japan denies to Chinese, and to Ameri- 
cans also, the right to own land in Japan ; and limits Chinese 
immigration to Japan. 

[9] 



The A B C's of the TWENTY-ONE DEMANDS 

One of the outstanding inequities of these demands is 
the fact that they nowhere mention or allow anything in the 
way of a quid pro quo, or compensatory equivalent, to China 
for what she is asked to concede to Japan. 

After the Chinese, contrary to the stern injunction of 
Japan, had informed the other Powers and the press of the 
presentation of the demands, diplomatic pressure and other 
factors induced Japan to moderate her demands, principally 
by the temporary abeyance of Group V. It is believed that 
British opposition to Article 5 of this Group, whereby Japan 
invaded the British '"sphere" in the Yangtze, was influential 
in causing the Japanese Government to abate somewhat. 
The Chinese Government retarded the negotiations as long 
as it could, but was compelled to yield finally to an ulti- 
matum delivered by Japan. 

Text of Japan *s Ultimatum to China 

The Imperial Japanese Government hereby again offer 
their advice and hope that the Chinese Government, upon 
this advice, will give a satisfactory reply by six o'clock p. m. 
on the ninth day of May. It is hereby declared that if no 
satisfactory reply is received before or at the specified time 
the Imperial Japanese Government will take such steps as 
they may deem necessary. 

Peking, May 7, 1915. 

Extract from 

Text of China 's Statement Re The Ultimatum, 

It is plain that the Chinese Government proceeds to the 
fullest extent of possible concession in view of the strong 
national sentiment manifested by the people throughout the 
whole period of the negotiations. All that the Chinese Gov- 
ernment strove to maintain was China's plenary sover- 
eignty, the treaty rights of foreign Powers in China, and 

[10] 



The A B C's of the TWENTY-ONE DEMANDS 

the principle of equal opportunity. * * * in consider- 
ing the nature of the course they should take in reference to 
the ultimatum, the Chinese Government was influenced by 
its desire to preserve the Chinese people, as well as a large 
number of foreign residents in China, from unnecessary 
suffering, and also to prevent the interests of friendly Pow- 
ers from being imperiled. For these reasons the Chinese 
Government was constrained to comply in full with the ulti- 
matum, but, in complying, the Chinese Government dis- 
claims any desire to associate itself with any revision which 
may thus be affected in the various conventions and agree- 
ments concluded between other Powers, with respect to the 
maintenance of territorial independence and integrity, the 
preservation of the status quo, and the principle of equal op- 
portunity for the commerce and industry of all nations in 
China. 

The monopolistic and exclusive advantages which Japan 
attempted to establish in China for its subjects, and a posi- 
tion of quasi-sovereignty over China, appear in the text of 
the Twenty-One Demands; and they did not escape the 
notice of other Governments. 



Text of Note of the American Government 

In view of the circumstances of the negotiations which 
have taken place or which are now pending between the 
Government of China and the Government of Japan and the 
agreements which have been reached as a result thereof, the 
Government of the United States has the honor to notify the 
Government of the Chinese Republic that it cannot recog- 
nize any agreement or undertaking which has been entered 
into, or which may be entered into between the Governments 
of China and Japan impairing the treaty rights of the 
United States and its citizens in China, the political or terri- 

[11] 



The A B C's of the TWENTY-ONE DEMANDS 

torial integrity of the Republic of China, or the interna- 
tional policy commonly known as the open-door policy. 

Dated May 16, 1915. 

An identical Note was at the same time handed to the 
Japanese Government by the American Embassy at Tokio. 



Applications to the Washington Conference 

The core of issues involved in this conference lies in the 
situation of China resultant in a large measure from 
Japan's policy as expressed in the original Twenty-One De- 
mands, and in the agreement wrung from China under 
ultimatum. 

At the Peace Conference at Paris the Chinese Govern- 
ment contended that those agreements with Japan which 
followed the demands and the ultimatum were invalid, since 
they were obtained by intimidation. Furthermore, the 
Chinese Government contended, in respect to former lease- 
hold and vested interests of Germany in Shantung, that 
those reverted automatically to China when China declared 
war against Germany, thereby terminating all treaties be- 
tween the two nations. 

Japan's claims were found (a matter disclosed to China, 
and to the American Government, for the first time after 
the Paris conference convened) to rest on secret agreements 
made between Japan and Great Britain, Japan and France, 
and Japan and Italy, during the war. 

When the Council of Four allotted the German so-called 
rights in Shantung to Japan, the Chinese Government re- 
fused to sign the Treaty of Versailles, and to this date never 
has acquiesced in its disposition of Kiaochou. 

The Senate of the United States adopted a reservation 
rejecting the Shantung articles of the treaty specifically. 

The Shantung question remains in this state, with Japan 
still in occupation of the Province. 

[12] 



^'r 



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028 3618596 




